10 PART I: OVERVIEW AND STATEMENT OF FACTS 1. This intervention is brought in coalition by seven national, provincial and local women s groups 1 whose members, decision-making bodies, and clients include prostituted women ( Women s Coalition for the Abolition of Prostitution or Women s Coalition ). The Women s Coalition members provide front line crisis and anti-violence services, representation and advocacy for women and girls who are or have been prostituted, who are criminalized and incarcerated in relation to prostitution, who are trying to escape prostitution, who are targeted for prostitution, and who have been subject to male violence, including prostitution. 2. Prostitution is a practice of sex inequality. Most of those prostituted are women and girls. Almost all buyers/johns and most pimps/profiteers are men. The buying and selling of women s bodies in prostitution is a global practice of sexual exploitation and male violence against women that normalizes the subordination of women in a sexualized form. It exploits and compounds systemic inequality on the basis of sex, Aboriginality, race, poverty, age and disability. The Court of Appeal erred in failing to recognize how these inequalities produce and define the prostitution industry and how they are relevant to each stage of the Charter analysis under s The s. 7 Charter analysis must be consistent with substantive equality for women, with particular attention to Aboriginal women, as guaranteed in ss. 15(1), 25 and 28 of the Charter. A substantive equality analysis must reflect the fact that the challenged laws simultaneously criminalize two distinct groups: (a) the women who are prostituted; and (b) the johns, pimps, brothel owners and others who exploit prostituted women and profit from the sale of their bodies. That the laws have dual functions punishing prostituted women and interfering with the men who harm them is significant for all stages of the Charter analysis. It must affect the understanding of the liberty and security of the person interests at stake, the analysis of principles of fundamental justice, and the remedial implications under s The Women s Coalition submits that the Charter, interpreted consistently with Canada s two-fold international commitments to (a) protect prostituted women and (b) constrain those who 1 The Women s Coalition members are: Canadian Association of Sexual Assault Centres, Native Women s Association of Canada, Canadian Association of Elizabeth Fry Societies, Action Ontarienne contre la Violence Faite aux Femmes, la Concertation des Luttes contre l Exploitation Sexuelle, Le Regroupement Québécois des Centres d Aide et de Lutte contre les Agressions à Caractère Sexuel and Vancouver Rape Relief Society. 2 Canada (AG) v Bedford, 2012 ONCA 186, Appellants Record ( AR ), Vol 2, Tab 7 [OCA Judgment].

11 2 exploit or traffic in them, mandates the asymmetrical criminalization of prostitution 3 as follows: a. First, criminalizing prostituted women deprives them of liberty and security of the person contrary to the principles of fundamental justice because it punishes women for men s exploitation of them. Thus s. 210(2)(a) [inmate of a bawdy house] is unconstitutional in its entirety, and s. 210(1) [keeping a bawdy house] and s. 213 [communicating] are unconstitutional only to the extent that they apply to prostituted persons. b. Second, criminalizing johns, brothel owners and those who live off the avails of prostitution ( pimps/profiteers ) does not violate the Charter rights of prostituted women. Instead, such laws support prostituted women s security of the person. It is contrary to principles of fundamental justice to decriminalize men s prostitution of women in order to protect women from those same men. Thus s. 210 [keeping a bawdy house], s. 210(2)(b) [found-in at a bawdy house], s. 210(2)(c) [knowingly permitting a bawdy house], s. 212(1)(j) [living on the avails] and s. 213 [communicating] are constitutional to the extent that they apply to johns, brothel owners, and pimps/profiteers. The Women s Coalition asks the Court to take into account the inequalities between prostituted women and those who buy, pimp and profit off them, and to find that s.7 does not require and is not consistent with the decriminalization of johns, brothel owners and pimps/profiteers. 5. Prostitution, regardless of physical location, is not engaged in by a random cross-section of the domestic and international population. The sexual exploitation, coercion, and violence that define prostitution are practices committed overwhelmingly by men against women and children. 4 This sexual and sexualized inequality is compounded by other systemic inequalities that determine who enters and remains in prostitution and that amplify the power of those who buy and profit from prostituted women. Many women enter prostitution as children, often after being sexually abused and/or placed in state care. Many women are pushed into and remained in prostitution because of poverty, homelessness, low levels of education, and disability, including 3 Catharine A MacKinnon, Trafficking, Prostitution, and Inequality (2011) 46 Harv CR CLL Rev 272 at 307. Women s Coalition Authorities ( WC Auth ), Tab 23. See the legal regimes in Sweden and Norway: Affidavit of Janice Raymond, Joint Appeal Record ( JAR ), Vol 55, Tab 119, pp ; Reasons of Himel J, AR, Vol 1, Tab 3 at paras [OSC Judgment]. See also Sexual Offences Act 2003 (UK), c 42, s 53A (criminalizing buyers of prostitutes controlled for gain), WC Auth, Tab Report of the Special Committee on Pornography and Prostitution in Canada, Vol 2 (1985), JAR, Vol 71, Tab 154B, p [Fraser Report]; Report of the Standing Committee on Justice and Human Rights, The Challenge of Change: A Study of Canada s Criminal Prostitution Laws (2006), JAR, Vol 82, Tab 164, pp 24918, [Challenge Report].

13 4 PART III: ARGUMENT A. Women s Coalition Approach to s. 7 of the Charter 8. Section 7 of the Charter must be interpreted harmoniously with other Charter rights. In particular, the guarantee of sex equality in s. 15(1) and s. 28, and the guarantee of Aboriginal and treaty rights in s. 25 of the Charter mandate an approach to s. 7 analysis that respects and promotes the equality rights of women, with particular attention to the circumstances of Aboriginal women. 9 Section 15(1) is the broadest of all guarantees and applies to and supports all other Charter rights. 10 The Court must consider the inequalities of prostitution and the relative power of those covered by the laws at each stage of the s. 7 analysis. A failure to integrate substantive equality norms into s. 7, and to consider the different positions of those affected by a challenged law, risks turning s. 7 into a means of reinforcing inequality Section 7 must also be interpreted consistently with Canada s international obligations. 12 Canada has committed itself to oppose the exploitation of the prostitution of women and the trafficking of women for prostitution. 13 Trafficking of women into and within Canada is driven by the domestic demand for prostitution, which increases in jurisdictions where johns are decriminalized. 14 The challenged laws are the only provisions that criminalize the purchase of trafficked persons. They work alongside and support other laws designed to give effect to Canada s international commitments. 10. Canada has also committed to take measures, in conjunction with indigenous peoples, to ensure that indigenous women and children enjoy the full protection and guarantees against all forms of violence and discrimination. 15 It would be contrary to these commitments to 9 R v Lyons, [1987] 2 SCR 309 at 326, WC Auth, Tab 11; R v Mills, [1999] 3 SCR 668 at 727, WC Auth, Tab 13; New Brunswick v G(J), [1999] 3 SCR 46 at para 115 (L Heureux-Dubé, Gonthier and McLachlin JJ), WC Auth, Tab 4; R v Big M Drug Mart Ltd, [1985] 1 SCR 295 at 336, WC Auth, Tab Andrews v Law Society of British Columbia, [1989] 1 SCR 143 at 185, WC Auth, Tab R v Edwards Books and Art, [1986] 2 SCR 713 at 779, WC Auth, Tab Canada v Khadr, [2010] 1 SCR 44 at para 23, AGO Auth, Tab 8; Reference Re Public Service Employee Relations Act (Alta), [1987] 1 SCR 313 at , WC Auth, Tab Protocol to Prevent, Suppress and Punish Trafficking in Persons, Especially Women and Children, Supplementing the United Nations Convention Against Transnational Organized Crime, UNGAOR, 55th Sess, Annex II, UN Doc A/55/383, (2000), Art 9, WC Auth, Tab 21; Convention on the Elimination of All Forms of Discrimination Against Women, 18 December 1979, 1249 UNTS 13, Art 2(f), 5(a), 6, Can TS 1982 No 31, AGO Auth, Tab Factum of the AG Ontario, Appendix B (ix, xi, xiii-xv); Factum of the AG Canada at para Declaration on the Rights of Indigenous Peoples, A/RES/61/295, UNGAOR, 61st Sess, UN Doc A/61/L.67 and Add.1, (2007), Art 22, WC Auth, Tab 20.

14 5 decriminalize the men who buy Aboriginal women in prostitution, and those who profit from that prostitution, thereby exploiting and reinforcing this inequality. B. Women s Coalition Analysis of Security of the Person 11. In analysing whether the security of the person of prostituted women is violated, this Court must take into account how the impugned laws apply to two distinct groups and must remain acutely attuned to the relative inequality of those two groups. The Court must analyse the effect of how the provisions criminalize prostituted women separately from the effect of how the provisions criminalize the persons who buy, traffic and profit from them. 12. The Women s Coalition submits that the criminalization of prostituted women through the communicating and bawdy house laws undermines women s security of the person, but for reasons distinct from those relied on by the courts below. A substantive equality approach to security of the person recognizes that in criminalizing prostituted women, the state punishes women for their own sexual exploitation. 16 A criminal record makes it even more difficult for women to find sources of income other than prostitution, endangering their personal security. 13. However, the Women s Coalition submits that the laws that criminalize johns, brothel owners, pimps and profiteers, in any location, do not cause men s violence against women and do not violate prostituted women s security of the person. The extraordinary level of danger that women in prostitution face comes from johns, brothel owners, pimps and profiteers who enforce and demand male sexual access to women s bodies in a commercially exploitative industry. The decriminalization of these men would violate women s security of the person. 14. The Court of Appeal erred in concluding that the safety of women in street prostitution would be enhanced by decriminalizing bawdy houses because it would allow these women to move inside. If the likelihood of a criminal charge was a determining factor, women would already be indoors, since both prostituted women and johns are already much less likely to be charged and convicted for bawdy house prostitution than for street prostitution. Women are prostituted on the street because there is male demand for street prostitution. This demand 16 Michelle Madden Dempsey, Sex Trafficking and Criminalization: In Defence of Feminist Abolitionism (2010) 158 U Pa L Rev 1729 at , WC Auth, Tab 24.

15 6 persists regardless of the legal status of brothels The dissenting justices in the Court of Appeal recognized that women in street prostitution would not move indoors, but erred in concluding that the security of women in street prostitution is violated by the communicating law because it decreases the time women have to screen johns for violence. 18 Decriminalizing johns and downloading responsibility for policing them onto prostituted women revives the long-discredited notion that women can and should be privately responsible for preventing male violence. 19 Any man can be violent at any time and women should not be expected to predict when a man will turn violent Even assuming that one woman could reject a john she fears will harm her, the risk of harm would simply be displaced onto another woman who cannot afford to refuse. Women with the least relative privilege in terms of age, class, disability, Aboriginality or race are more likely to endure and less able to refuse the most dangerous and brutalizing kinds of prostitution, whether indoor or outdoor. The dissenting justices support for decriminalizing not only prostituted women but also the men who buy them, in the hope of moving street prostitution to more visible areas, truncates the inquiry. Regardless of where a john begins his purchase, his prostitution of a woman concludes in private, where the violence occurs The Court of Appeal s focus on location distracts attention from the men who are the source of prostitution s harms; that the violence they inflict can be reduced in indoor settings is not obvious from the record. 22 Although the Court of Appeal relied on the proposition that the advantages of home field are well understood by everyone, 23 the home is too often an extraordinarily dangerous place for women. 24 The evidence demonstrated considerable harms are present in indoor prostitution. Women who were prostituted in brothels and other indoor 17 Pratt Affidavit, Ex C, Suppl JAR, Vol 2, Tab 178, pp 26926, 26934, ; OSC Judgment, supra note 3 at paras 93, 189, 196; Factum of the AG Ontario, Appendix B (i, ii). 18 OCA Judgment, supra note 2 at para Declaration on the Elimination of Violence against Women, A/RES/48/104, UNGAOR, 48th Sess, UN Doc A/48/629, (1993), Art 4, WC Auth, Tab R v Evans, 2009 BCSC 1615 at paras 36-9, WC Auth, Tab R v Pickton, 2009 BCCA 300 at paras 25-9, 36, WC Auth, Tab OCA Judgment, supra note 2 at paras 111, 113, Ibid at para R v Lavallee, [1990] 1 SCR 852 at , WC Auth, Tab 10. See also: R v Whynot, [1983] NSJ No 544 (QL), WC Auth, Tab 16; BM v British Columbia (AG), 2004 BCCA 402, WC Auth, Tab 2; R v Malott, [1998] 1 SCR 123, WC Auth, Tab 12.

16 7 operations testified that they were assaulted and sexually assaulted; no one intervened. Some women considered street prostitution a better option because they could decline johns, johns were less likely to be intoxicated or refuse a condom, and pimps had less control. 25 As the Court of Appeal acknowledged, prostitution is inherently dangerous in virtually any circumstance The Court of Appeal erred in relying on Canada (AG) v PHS Community Services Society 27 to conclude that decriminalization of bawdy houses would serve as a form of harm reduction for prostitution. 28 The analogy between supervised injection for drug use and prostitution is both flawed and incomplete. Prostitution is a gendered practice of inequality. Women are not addicted to prostitution and prostitution is not a disease. The physical risks of addiction come from a chemical substance and the equipment used to inject it; in prostitution the risks come from other people. The measures in PHS decriminalized only the addicted person, while here the Respondents also seek to decriminalize the people who are the source of the harms, namely johns and pimps. Attempting to direct men s demand for prostitution to particular locations does not reduce harm when it is the demand itself that causes harm. C. Women s Coalition Analysis of the Principles of Fundamental Justice 19. The majority of the court below concluded that it does not violate the principles of fundamental justice to criminalize street prostitution through the communicating law, but that it does violate the principles of fundamental justice to criminalize brothel prostitution through the bawdy house laws. The Women s Coalition submits that this distinction, based on physical location, is not correct. The relevant distinction is that the challenged laws are contrary to the principles of fundamental justice when applied to prostituted women, but are neither overbroad nor grossly disproportionate when applied to johns, brothel owners, pimps and profiteers. 20. The gendered nature of prostitution, the enforcement of laws unequally against women 29 and the relationship between prostitution and the degradation and inequality of all women, have 25 Affidavit of Amy Lebovitch, JAR, Vol 2, Tab 13, p 165; Affidavit of Susan Davis, JAR, Vol 5, Tab 22, p 936; Affidavit of Linda Shaikh, JAR, Vol 8, Tab 31, p 1862; Affidavit of Natasha Falle, AR, Vol 4, Tab 39, pp 10-11; Affidavit of DS, AR, Vol 5, Tab 42, p 8; Affidavit of Dawn Hodgins, AR, Vol 5, Tab 43, pp 31-2; Affidavit of TD, AR, Vol 5, Tab 44, p 51; Affidavit of HC, AR, Vol 5, Tab 46, pp OCA Judgment, supra note 2 at para [2011] 3 SCR 134, WC Auth, Tab OCA Judgment, supra note 2 at para Challenge Report, supra note 4 at pp

17 8 long been a feature of the public debate about legal responses to prostitution. However, the relevance of substantive equality is not dependent on the government s specific objectives at the time of the passage of each of the challenged laws. The principles of fundamental justice in s. 7 must not reinforce inequality by artificially constraining the Charter values at issue. 21. This Court must balance the objectives of the laws against their effects in the context of the constitutional value of substantive equality by recognizing (a) the role that male demand plays in sustaining prostitution as a practice of inequality; (b) the systemic inequalities that push women into prostitution and keep them there; and (c) that the same law as applied to johns and prostituted women has different effects on these groups because of this inequality. 22. In a context of substantive inequality, simplistic reliance on the concept of individual choice does not aid the s. 7 analysis. 30 The Appellants rely on the choice of women to prostitute to argue that it is fundamentally just to criminally punish them. 31 The Respondents rely on the choice of women to prostitute to argue that it is fundamentally unjust to limit those choices through law. 32 Neither party considers the inequalities that produce and amplify the power exercised by those who buy women in prostitution. Neither confronts the inequalities that shape and constrain women s entry into prostitution and their inability to exit. These inequalities, and prostitution s harms, need not be experienced identically by all women in order for prostitution to be recognized as a discriminatory practice The Women s Coalition submits that the Court must recognize the extreme imbalances of power held by the actors in the prostitution industry as a central consideration for the principles of fundamental justice. Recognizing these inequalities makes clear that the laws operate in two ways they validly interfere with men s exploitation of women but also unjustly punish women for that exploitation. 24. Criminalizing prostituted women is inconsistent with principles of fundamental justice. On any version of the objectives advanced by the parties, the Women s Coalition submits that criminalizing women in prostitution is overbroad and grossly disproportionate. The 30 Quebec (AG) v A, 2013 SCC 5 at para 342 (per Abella J), WC Auth, Tab Factum of the AG Ontario at paras 20-2; Factum of the AG Canada at para Factum of the Respondents/Appellants on Cross Appeal at para Ref re Section 293 of the Criminal Code, 2011 BCSC 1588 at paras 13, 14, 1190, WC Auth, Tab 17.

18 9 systemic inequalities that drive women into prostitution and keep them there must be recognized and addressed by the state. It is fundamentally unjust for the state to criminalize those who are targeted for abuse and exploitation because of their inequality and marginalization. 34 This is particularly true where such punishment falls disproportionately on Aboriginal women. 25. Criminalizing johns, brothel owners, pimps and profiteers is consistent with principles of fundamental justice. The criminalization of men who buy, sell and profit off women in prostitution is neither overbroad nor grossly disproportionate. It is consistent with Canada s domestic and international commitments to protect prostituted women and to interfere with their exploitation. There is no constitutional right of men to buy sex in any location. Decriminalizing men s purchase of women s bodies does nothing to disrupt or combat male violence against women. Instead, it validates male demand and expands the prostitution industry, reinforcing the inequality of all women and of Aboriginal women in particular. The failure of police to arrest Robert Pickton for violating the prostitution laws did not enhance women s safety. Instead, one means for the state to interfere with his violence was lost. 26. The majority of the Court of Appeal relied on the involvement of organized crime, the drug trade, and other criminal activity to find that the communicating law did not violate the principles of fundamental justice. These conclusions should apply equally to the principles of fundamental justice as applied to the bawdy house laws. The evidence indicated that trafficking, organized crime and child prostitution are facilitated by the secrecy of indoor venues. 35 The source of these harms in all locations are overwhelmingly johns and pimps/profiteers, not prostituted women. D. Section 212(1)(j) (living on the avails) does not violate s. 7 of the Charter 27. The Women s Coalition agrees with the Appellants that prostituted women s security is not violated by criminalizing the economic interest of third parties in profiting from prostitution. Pimping and profiteering does not protect prostituted women; it subjects them to additional pressure, risk, and abuse. A requirement to prove circumstances of exploitation is unnecessary 34 Ref re ss 193 and 195.1(1)(c) of the Criminal Code (Man), [1990] 1 SCR 1123 at 1193 (per Lamer J) and (per Dickson CJ), AGO Auth, Tab 63; R v Mara, [1996] OJ No 364 (CA) at 651, AGC Auth, Tab Factum of the AG Canada at para 27.

19 10 because living on the avails is inherently exploitative. "Living on the avails" has been interpreted as receiving an economic benefit from another's prostitution in the absence of any moral or legal obligation to provide that support.36 This economic incentive creates a source of additional pressure for women to remain in prostitution. Prostituted women must engage in more prostitution with more johns if they must provide some or all of their income to others. This increases harm to women in prostitution, including the risk of physical and sexual violence. E. Remedy 28. A declaration of invalidity must be narrowly tailored to what is required to bring a law into constitutional conformity so as not to inappropriately pre-empt or curtail Parliament's legislative options. This caution is particularly apt where, as here, the impugned laws target the conduct of numerous differently situated actors but the Charter rights of only one group are at issue. The remedy for the violation of prostituted women's s. 7 rights should advance, rather than imperil their personal security. Where, as here, parts of a challenged law are constitutional and serve to protect the interests of vulnerable persons, it is appropriate to read in an exception that declares the challenged laws to be of no force or effect only to the extent that they apply to prostituted persons. 37 Such a remedy is consistent with substantive equality and the Charter's purposes. PART IV: ORDER SOUGHT 29. The Women's Coalition requests leave to make oral argument at the hearing of the appeal. ALL OF WHICH IS RESPECTFULLY SUBMITTED THIS 30th DAY OF MAY a... J. ay Fittil_ klay Co sel for he ervener Women's Co:li 'on t Abolition of ti uti n 36R v Grilo (1991), 2 OR (3d) 514 (CA) at 522, AGC Auth, Tab 31; R v Barrow (2001), 54 OR (3d) 417 (CA) at para 29, AGC Auth, Tab R v Sharpe, [2001] 1 SCR 45 at paras , WC Auth, Tab 15.

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